King Edward Heritage Conservation District Plan - Documents

King Edward
Heritage Conservation District Plan
Draft- June 2014
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King Edward Heritage Conservation District Plan
1.0
Background
The King Edward Heritage Conservation District (HCD) was designated in 1982 by the City of
Ottawa for its cultural heritage value. It is one of the earliest heritage conservation districts
designated in Ontario and one of the first designated in Ottawa. At the time of designation,
there was no heritage conservation district management plan or statement of heritage
character adopted by Council. As a result, the management of change in this district for the
past 30 years has been on a case by case basis using best practices in heritage conservation.
Changes to the Ontario Heritage Act in 2005 provided municipalities with the ability to adopt
heritage conservation district plans by by-law to assist in the management of change in HCDs.
For existing HCDs, a management plan can be adopted by a new by-law that does not change
the boundaries or designation of the existing HCD.
In 2007, the City of Ottawa initiated the Sandy Hill Heritage Study (SHHS) with the goal of
evaluating all of the buildings in the study area and proposing mechanisms to protect and
enhance the heritage character of the neighbourhood. One of the outcomes of the SHHS is the
creation of HCD plans for the five existing districts in the study area. This document is the
management plan for the King Edward HCD.
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Boundaries
The King Edward HCD includes one block on the east side of King Edward Avenue between
Laurier Avenue and Wilbrod Street. This small district includes only four buildings. The
boundaries are shown in the map below:
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Policy Framework
The King Edward Avenue Heritage Conservation District will be regulated by both municipal
and provincial policies. These include Part V of the Ontario Heritage Act, the City of Ottawa
Official Plan and the Provincial Policy Statement (PPS).
Ontario Heritage Act
The Ontario Heritage Act (the Act) regulates the protection of cultural heritage resources within
the province. A property that has been formally protected under the provisions of the Act is
referred to as a “designated” property. According to Section 41.1 (2) of the Act, a municipality
may pass a by-law adopting a heritage conservation district plan for any districts designated
prior to 2005.
City of Ottawa Official Plan
Section 2.5.5 of the City of Ottawa Official Plan provides direction regarding the protection of
cultural heritage resources in the city. Policy 2.5.5 (2) states that:
Individual buildings, structures, sites and cultural heritage landscapes will be designated
as properties of cultural heritage value under Part IV of the Ontario Heritage Act.
Groups of buildings, cultural landscapes, and areas of the city will be designated as
Heritage Conservation Districts under Part V the Ontario Heritage Act.
The King Edward Avenue HCD was designated by City Council in 1982 and the purpose of this
document is to enhance the protection for the existing HCD by implementing a HCD plan to
guide change in the district.
Provincial Policy Statement, 2014
The purpose of the Provincial Policy Statement (PPS), issued under the Planning Act, is the
provide municipalities in Ontario with policy direction on matters related to land use planning
and development. Part V, Section 2.6 of the PPS provides direction regarding cultural heritage
resources. It states:
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Significant built heritage resources and significant cultural heritage landscapes shall be
conserved; and
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Planning authorities shall not permit development and site alteration on adjacent lands
to protected heritage property except where the proposed development and site
alteration has been evaluated and it has been demonstrated that the heritage attributes
of the protected heritage property will be conserved.
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Heritage Conservation District Plan
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According to Section 41.1 (5) of the Ontario Heritage Act, a heritage conservation district plan
shall include a statement of the objectives of the plan, a statement of cultural heritage value, a
description of the attributes of the district, policy statements, guidelines and procedures for
achieving the objectives of the plan and managing change and a description of the types of
alterations that are minor in nature and can be undertaken without a permit.
4.1
Statement of Objectives
The objectives of this plan are:
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Identify and describe the cultural heritage value and heritage attributes of the HCD
Encourage the ongoing conservation and restoration of buildings of cultural heritage
value in the HCD
Provide a framework to manage change in the HCD in the future.
4.2 Statement of Cultural Heritage Value: King Edward Heritage Conservation
District
Description of Place
The King Edward Heritage Conservation District (HCD) consists of four buildings along the
east side of King Edward Avenue between Laurier Avenue and Wilbrod Street. The King
Edward HCD Heritage Conservation District was designated by the City of Ottawa in 1982
through by-law 310-82.
Cultural Heritage Value
The cultural heritage value of the King Edward HCD lies in its association with the
development of Sandy Hill in the 19th and 20th centuries. It is an intact streetscape, significant
for its association with the early development of Ottawa as the national capital, its rich
architectural character and for its historic associations with prominent Ottawa residents.
The King Edward HCD was originally part of the lands granted by Colonel John By to
Lieutenant Rene-Leonard Besserer in 1828. Besserer died suddenly after the land grant and
the estate was inherited by his brother, Louis Besserer, a veteran of the War of 1812 and a
businessman in Quebec City. Louis Besserer relocated to Ottawa in the 1830s to develop his
estate. The land was first subdivided beginning in 1834 by Besserer’s agent, William Stewart,
who laid out the street plan for the estate. Development was slow until after Ottawa was
named the capital of Canada in 1857. The influx of politicians and civil servants after the
completion of the Parliament Buildings in 1865 resulted in the transformation of Sandy Hill from
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a sparsely populated neighbourhood at the edge of the city to an upper-middle class
residential neighbourhood.
The King Edward HCD has architectural value for the quality of its buildings and the
streetscape. The four buildings in the King Edward HCD represent different types and styles,
including a three door row at 503-507 King Edward Avenue, a semi-detached house at 515517 King Edward, the elaborate Queen Anne Revival Martin Terrace and the substantial stone
Panet House at 189 Laurier Avenue. These buildings are representative of the eclectic mix of
building types constructed in Sandy Hill in the late 19th and early 20th century.
The King Edward HCD is significant for its association with the development of Sandy Hill as
an upper-middle class neighbourhood that was home to many politicians and senior civil
servants. In particular, the King Edward HCD is associated with many senior civil servants in
the late 19th century including Colonel Charles Panet and Colonel Francis Pinault, both of
whom served as the Deputy Minister of Militia and Defence and resided at Panet House. Other
notable civil servants from the time period include John Chisholm (Department of Justice), Lt.
Colonel J. Biggar (Customs Department) and John O’Connor, Postmaster General and
President of the Privy Council.
Heritage Attributes
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Consistent large setbacks from the street with open yards
Diverse examples of building styles including Queen Anne Revival and Second Empire
Consistent use of natural building materials including red brick, limestone and wood
Two notable terraces at 503-507 King Edward Avenue and Martin Terrace at 519-525
King Edward Avenue
Panet House at 189 Laurier Avenue
Mature deciduous street trees
Consistent front yard setbacks along King Edward Avenue
Management Guidelines
The King Edward Heritage Conservation District has been designated since 1982 and has
retained much of its historic fabric. The management guidelines in this section are intended not
only to retain historic fabric, but also to manage the change that is inevitable in the HCD. The
guidelines are arranged into four sections:
1. Guidelines for Category 1, 2 and 3 buildings
2. Guidelines for Category 4 building
3. Guidelines for Infill
4. Guidelines for Streetscape and Public Realm
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The Guidelines for Category 1, 2, and 3 buildings encourage retention and conservation of
existing historic buildings and provide guidance on alterations and additions to historic
buildings. The Guidelines for Category 4 buildings provide guidance on alterations and
demolition of non-contributing buildings in the HCD.
Presently, there are no vacant lots in the King Edward HCD but vacant lots could be created
through demolition of non-contributing buildings, fire or other disaster. The guidelines for infill
are intended to guide new development in the HCD or new buildings on properties left vacant
through the loss of an historic building to fire or natural disaster
Finally, the streetscape of King Edward is important in defining its heritage character and the
guidelines for streetscape and public realm provide guidance in alterations and enhancements
to these areas.
Technical Guidance
The City of Ottawa adopted the Parks Canada Standards and Guidelines for the Conservation
of Historic Places in 2008 and these will be applied in conjunction with the guidelines in this
document.
Additional technical guidance for restoration projects can be found online in the United States
National Parks Service Preservation Briefs which provide detailed ‘how-to’ briefs on various
elements of restoration (ie. Masonry, woodwork, metal).
Staff in the Heritage Section can also provide guidance and advice on specific projects. .
Building Evaluation
A building by building inventory of all buildings in the HCD was completed and all buildings
were given a score. The score ranges for each category are:
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Category 1: 70-100
Category 2: 55-69
Category 3: 40-54
Category 4: 0-39
Guidelines for Category 1, 2 and 3 Buildings
Category 1, 2, and 3 buildings are considered to be contributing buildings in the heritage
conservation district and are important to maintaining the overall character of the HCD.
4.4.1 General Guidelines
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1. Ongoing maintenance of contributing buildings is strongly encouraged as it prevents
deterioration of heritage attributes and is the most cost-effective means of preserving
heritage character.
2. Repair and restoration of heritage attributes is preferable to replacement.
4.4.2 Demolition and Relocation
1. Demolition of Category 1, 2 and 3 buildings will not be supported except in extraordinary
circumstances.
2. Any application to demolish a building in the HCD must be accompanied with plans for a
replacement building.
3. Where a building is approved for demolition, the building must be recorded at the
direction of heritage planning staff and the information should be deposited at the City of
Ottawa Archives. In addition, consideration should be given to salvaging historic
materials as the building is demolished.
4. The relocation of contributing buildings will not be supported except in extraordinary
circumstances.
4.4.3 Roofs and Chimneys
1. Every effort should be made to retain original roofing materials (ie. cedar, slate) where
possible.
2. Where the original roofing material is missing, property owners are encouraged to
restore the roof to its historic material.
3. Where historic roofing materials cannot be retained, modern roofing materials such as
asphalt shingles may be considered.
4. Original rooflines (gable, hip, gambrel, flat etc.) must be maintained.
5. New dormer windows should be located on the rear of the building where possible.
6. The addition of solar panels may be permitted. Wherever possible, solar panels should
be installed in a manner that will not impact the heritage fabric of the building if they are
removed. In addition, solar panels should be located on the rear slope of the roof or on
a flat roofed portion of the building so that they are not obvious from the historic
streetscape.
7. New eaves troughs and downspouts may be permitted if required to solve drainage
issues, but should be located in an inconspicuous location and installed in a way that
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does not damage the building. Property owners must consult heritage staff prior to
installation.
8. Chimneys are important heritage attributes of historic buildings. Historic chimneys
should be retained and maintained on a regular basis. Non-functioning chimneys should
be capped and retained.
4.4.4 Cladding
1. Original brick and stone cladding should be conserved and maintained. Restoration of
historic cladding is preferable to replacement.
2. If cladding requires replacement it must be replaced in kind. The material, form,
dimensions and profile should all be replicated. Only deteriorated portions should be
replaced. Replacement with modern cladding material (ie. vinyl or metal) is not
permitted.
3. The repointing of historic masonry is complex and must be undertaken by an
experienced mason. New mortar must match the original in colour, pointing method and
composition (soft, lime rich mortar rather than a cement based mortar).
4. Existing unpainted brick should not be painted.
5. Cleaning of brick and stone buildings should be undertaken using gentle and nonabrasive methods. Sandblasting is not an appropriate method to clean brick or stone.
Property owners must consult with heritage staff prior to cleaning of masonry.
4.4.5 Windows
Windows are an integral part of the historic appearance of a building. The size and placement
of windows are known as the fenestration pattern. The material and profile of individual
windows is also important. The profile includes the construction, operating mechanisms, sill
profile and width and design of the window frame. Some windows have been replaced over
time, but where original windows remain, they should be retained
Well maintained historic windows can last much longer than contemporary replacements.
There are practical and economical approaches that can be taken to repair historic windows
including painting, re-puttying or caulking, and weather stripping. Heritage staff can provide
advice on appropriate methods of restoration for historic windows and appropriate replacement
windows as necessary.
1. Original wood windows and storm windows should be retained. Energy efficiency can
be achieved with existing windows through the restoration of the windows and the
installation of weather stripping and appropriate exterior or interior wooden storm
windows.
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2. Repair and restoration of historic windows and doors is preferable to replacement. If
beyond repair, only those windows or doors that are deteriorated should be replaced.
3. Replacement windows should match the historic windows in size, shape, materials and
divisions. Where no documentary evidence of the original windows exists, replacement
windows should be based on local examples in similar houses as opposed to falsely
replicating windows to evoke a particular historic style.
4. The replacement of inappropriate newer windows and doors with more compatible units
is encouraged.
5. Vinyl windows will not be permitted. Metal clad wood windows may be approved in
special circumstances.
6. The shape and size of existing window and door openings should be retained.
The fenestration pattern must be maintained. Where a new window opening is required,
it must be located in a discreet area and follow the rhythm and scale of the historic
window pattern
4.4.6 Doors and Entrances
1. Existing historic doors should be retained and repaired.
2. The size, scale and proportions of existing doors and door openings will be preserved.
3. Where replacement is required, replacement doors must replicate the historic door as
closely as possible.
4. The pattern and arrangement of the entrance must be retained including doors,
sidelights and transom windows.
5. New entrances should not be introduced on the street facing façade.
6. The replacement of inappropriate modern doors with historically accurate doors is
encouraged.
4.4.7 Foundations
1. The original foundation material should be maintained and conserved. Repair and
restoration of original material is preferred over replacement.
2. Protect masonry from water penetration with proper drainage systems.
3. If replacement is necessary, only the deteriorated material should be replaced.
4. New surfaces or coatings such as parging that alter the appearance of the foundation
are not permitted.
5. Repointing of stone foundations is complex and must be undertaken by an experienced
mason. New mortar must match the original in colour, pointing method and composition
(soft, lime rich mortar rather than a cement based mortar).
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4.4.8 Porches and Verandas
1. Front porches and verandas are an integral part of the heritage character of the HCD.
These building elements including decorative elements such as brackets and railings
should be conserved and maintained.
2. The complete removal of historic porches or verandas will not be permitted
3. Where a porch has been neglected or is badly deteriorated, the porch should be
restored rather than replaced. If it is beyond repair, it should be replaced in kind with the
same materials, style, and size. For instance, the replacement of a wood column with a
fibreglass column is not appropriate.
4. All wood should be painted.
5. Where a component of the porch such as a bracket, railing, post, baluster or column
has deteriorated beyond repair, it should be replaced in the same style, material, and
proportions.
6. If a property owner wishes to reinstate a missing porch, the design should be based on
documentary evidence (ie. historic photographs). If no such evidence exists, the porch
should take cues from other local examples on similar buildings.
7. If changes to railing heights are required to meet the standards of the Building Code,
additions should be made to existing railings in the form of a contrasting but
sympathetic horizontal railing. Property owners are encouraged to contact a heritage
planner for guidance.
4.4.9 Decorative Features
The architectural styles of the late 19th and early 20th centuries featured extensive use of
decoration including decorative bargeboard (gingerbread) in the gable ends of a roof,
decorative finials, decorative brick work and terra cotta. These elements contribute significantly
to the overall style of a building and ongoing maintenance can ensure their protection and
longevity.
1. Decorative architectural features that contribute to the heritage value of the building
should be restored and retained wherever possible.
2. Decorative wood elements should be maintained on an ongoing basis to ensure that
areas of water penetration are found and repaired.
4.4.10 Garages and Accessory Buildings
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1. New garages and accessory buildings should be located in the rear yard and should be
designed to complement the heritage character of the District.
4.4.11 Paint Colour
Paint colour is not regulated under the Ontario Heritage Act but this section provides advice on
choosing appropriate paint colours.
1. If the original exterior colour scheme of the building is still intact it should be retained.
Repainting should be with colours based on the original.
2. If a property owner wishes to determine the original colours of their house, paint
scrapings from inconspicuous areas may reveal the history of the paint on the house.
3. Only colours associated with the era in which the building was built should be used. For
colour palettes, contact a heritage planner.
4. Many buildings feature two or three paint colours to highlight various details in the
decoration. Typical colours included cream, white, olive green, gold, pale green, gray,
ochre red.
5. Historical colour palettes are available from some of the major paint manufacturers.
These colour schemes are largely based on research in the United States but can
provide a starting point for colour choice in Canada. Advice on specific colours can be
provided by staff in the Heritage Section.
4.4.12 Landscape and Setting
1. There are no existing driveways off of King Edward Avenue and no new driveways or
front yard parking spaces should be created.
2. The existing low metal fence along King Edward Avenue is not historic, but is apprpriate
to the character of Sandy Hill and replicates a landscape element found throughout the
neighbourhood in the 19th and 20th centuries.
3. Linear walkways perpendicular to the sidewalk are typical in the HCD. These walkways
are generally narrow (approximately one metre) and lead directly to the bottom of the
front steps. Where a grade change is present concrete or stone steps are a typical
characteristic of this walkway. Existing walkway patterns should be retained and
restored where appropriate.
4. Front yards consist of primarily soft landscaping,. To maintain this character, patios or
other hard surfacing in the front yard are strongly discouraged.
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4.4.13 Additions to Category 1, 2 and 3 Buildings
1. Additions to contributing buildings must be sympathetic to the existing building,
subordinate to, and distinguishable from the original. Falsifying a past architectural style
in a new addition is strongly discouraged.
2. New additions will not result in the removal or obstruction of heritage attributes of the
building or the HCD.
3. The height of any addition to an existing building must not exceed the height of the
existing roof slope.
4. Additions should be located in the rear yard.
5. Additions must be consistent with the streetscape with respect to size, scale and
massing.
4.4.14 New multiple units in existing single family houses
Heritage designation cannot regulate the use of a building, and generally, the conversion of an
existing single family house in the HCD does not affect the cultural heritage value of the HCD.
The adaptive reuse of large historic single detached houses into multiple dwelling units is often
a good way to protect and give new life to significant heritage buildings. However, additions or
modifications to a house that increase the floor area for conversion to a multiple unit dwelling
must be approached with caution, as these can fundamentally change or destroy heritage
character.
The use of buildings is regulated through the zoning by-law. The section below is intended to
provide guidance regarding exterior changes that might be required to convert a single family
house into a multi-unit dwelling. The intention of these guidelines is to ensure that the
conversion will not negatively impact the architectural character of the building.
1. Exterior alterations to the building that are required to convert the building to a multi-unit
dwelling must not result in the loss of heritage fabric or negative impacts on the heritage
character of the building or the streetscape.
2. Alterations to the building, as required by the Building Code must be accommodated
within the interior of the building wherever possible. Where new exterior staircases or
doors are required, they should be located at the rear of the building and designed in a
manner that is sympathetic to the character of the HCD.
3. If an addition is proposed as part of the conversion, the addition must meet the
guidelines outlined in Section 4.4.13.
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4.5
Guidelines for Infill
Presently, there are no vacant lots in the King Edward HCD but vacant lots could be created
through demolition resulting from fire or other disaster. The guidelines in this section are
intended to ensure that new buildings in the HCD contribute to its character and are consistent
with the goals of the HCD.
1. New buildings will contribute to and not detract from the heritage character of the
district.
2. New building should be of their own time and not attempt to replicate a historic
style, but must be sympathetic to the character of the HCD in terms of massing,
facade proportions, rooflines, and the fenestration pattern.
3. Property owners are encouraged to engage a heritage professional such as a
heritage architect who is a member of the Canadian Association of Heritage
Professionals when planning a new building in the heritage conservation district.
4. Any new residential development in the King Edward HCD should be in keeping with the
traditional scale of residential buildings in the district. New construction should match
the immediate neighbours in terms of setback, footprint, and massing. New high rise
buildings are not appropriate in the HCD.
5. Windows in new buildings should be vertically aligned from floor to floor in keeping with
the historic character of the HCD.
6. White vinyl windows and horizontal sliding windows are not appropriate to the character
of the HCD and should not be used.
7. Cladding materials should reflect the character of the HCD. Appropriate materials
include but are not limited to brick and natural stone.
4.6
Guidelines for Streetscape and Public Realm
1. Existing block and street patterns must be retained in any new development.
2. Existing street trees should be preserved and new street trees of appropriate species
should be planted to ensure the continuity of the streetscape
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Alterations that do not require a heritage permit
The following are minor alterations that do not require a Heritage Alteration Permit under the
Ontario Heritage Act:
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Interior alterations
Painting/paint colour
Regular on-going building maintenance such as repointing and foundation repairs.
Repair, using the same materials, of existing features including roofs, exterior cladding,
cornices, brackets, columns, balustrades, porches and steps, entrances, windows,
foundations and decorative wood, metal or stone.
Alterations to soft landscaping
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